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Home My WebLink AboutMINUTES - 02252003 - D4 Contra Cash TO: BOARD OF SUPERVISORS County FROM: John Sweeten County Administrator DATE: February 25, 2003 SUBJECT: COUNTY BUDGET SPECIFIC REQUEST(S)OR RECOMMENDATIONS)&BACKGROUND AND JUSTIFICATION RECOMMENDATIONS: 1. ACKNOWLEDGE urgent requirement to begin to balance FY 2003-2004 budget by making mid-year FY 2002-2003 net County cost reductions, effective April 1, 2003. 2. ACKNOWLEDGE that departments have submitted, in response to a request from the County Administrator, budget reduction plans for FY 2003-04 that aim to reduce baseline budgets in FY 2003-04 by 10%of FY 2002-2003 net County costs. 3. DIRECT County Administrator to finalize these 10% net county cost reduction plans in consultation with department heads, taking into account operational requirements, and public health and safety mandates,and RETURN to the Board as soon as possible in March with required implementing actions in order to achieve maximum appropriate reductions beginning April 1, 2003. 4. DIRECT County Administrator, Human Resources Director, and Auditor-Controller to take preliminary administrative steps required to prepare for any abolishment of authorized positions, lay-offs, and appropriation reductions that may be required to achieve Board approved reductions. 5. DIRECT that any departmental reductions achieved beginning April 1, 2003 be reflected on an annualized basis in the County Administrator's FY 2003-2004 Recommended Budget. 6. DIRECT the County Administrator to develop legal documents for the sale and issuance of up to $400 million in pension obligation bonds to extinguish the County's unfunded accrued actuarial liability(UAAL) to the retirement system as of December 31, 2002, in a manner that (a) maintains the County's strong credit rating, and(b)optimizes potential debt restructuring savings. 7. DIRECT the County Administrator and County Counsel to prepare an agreement,',for consideration by the Board of Supervisors and the Retirement Board,that would earmark an appropriate portion of future excess surplus earnings to offset future market losses, earnings shortfalls and UAAL during the term of the pension obligation bonds. tj CONTINUED ON ATTACHMENT: X YES SIGNATURE: RECOMMENDATION OF COUNTY ADMINISTRATOR -RECOMMENDATION OF BOARD COMMITTEE APPROVE OTHER SIGNATURE(S): ACTION OF BOARD ON Fdn= 25, (} APPROVED AS RECOMMENDED OTHER x See attar adderdn VOTE OF SUPERVISORS I HEREBY CERTIFY THAT THIS IS A TRUE X&UNANIMOUS(ABSENT } AND CORRECT COPY OF AN ACTION TAKEN AYES: NOES: AND ENTERED ON THE MINUTES OF THE ABSENT: ITT* ABSTAIN: BOARD OF SUPERVISORS ON THE DATE SHOWN *'aVa-vimr Dmna Gerber remsed harse7.f and ATTESTED: Fau Bey 25, 2(703 dial mt participate. JOHN SWEETEN,CLERK OF THE BOARD OF CC: Department Heads SUPERVISORS AND COUNTY ADMINISTRATOR BY ;� - DEPUTY DISCUSSION: At its budget workshop of February 14, 2003, the Board of Supervisors received a presentation regarding pension obligation bonds, and considered a report from the County Administrator that contained a series of recommendations intended to facilitate the balancing of the FY 2003-04 County budget. The Board directed the County Administrator to present several of the recommendations to the Board at its February 25 meeting. As background,the County is faced with a baseline budget shortfaIl in the corning fiscal year of approximately $50 million'. This shortfall does not include programs reductions that may be required as a result of the State's budget crisis, which is expected to be resolved during the coming summer months. We have implemented a two-pronged approach to dealing with the $50 million budget'gap: (1)an across-the- board 10 percent reduction in departmental net County cost affecting all County departments, and (2)the pursuit of mitigation efforts to close the remaining 24 million shortfall. Among the mitigation efforts underway has been a series of consultations between labor and management for the purpose of identifying changes in business practices that can result in cost savings.' While this collaborative approach will no doubt produce worthwhile results in the long term, it will likely not result in savings that can be programmed into the FY 2003-04 Recommended Budget. Other mitigation efforts have included a"soft"freeze on new positions and the filling of position vacancies, departmental efforts to increase year-end fund balance, and an examination of the benefits of pension obligation bonds as a mechanism to reduce the County's annual payments to the pension system.' Notwithstanding these efforts, it is likely that our mitigation efforts will not fully close',the remaining budget gap. To make matters worse, some time after the Board adopts its FY 2003-04 spending plan, the State will enact its budget. That budget will no doubt require significant additional reductions in the County's adopted budget. The weight of all of the fiscal pressures affecting the County's upcoming budget prompted the Administrator to present the above-mentioned budget balancing recommendations to the Board. The most noteworthy of thein is the recommendation that the Board direct the Administrator to implement the ten percent net County cost reduction program on April 1 rather than waiting until July 1 as originally planned. Also of importance are recommendations related to the issuance of pension obligation bonds, which can significantly reduce the County's annual costs for contributions to the retirement system. .Early Implementation of Ten Percent Cut Plan. While it would be preferable to not disrupt existing authorized spending plans, the size of the County's anticipated budget shortfall leaves little choice. We had planned to implement on July 1 a$26 million,ten percent reduction in net County costs across all departments. It is recommended that this plan be implemented on April 1 instead. Early implementation will make possible savings of up to $6 millioW in additional net County cost, and will lessen the extent of program reductions and disruptions that will be required in FY 2003-04. The same is true with regard to existing service contracts; to the extent possible, expenditure reductions should be instituted in the current year in order to reduce budget year service curtailments. Pension Obligation Bonds. As a result primarily of losses in the equities markets, the pension system has accumulated quickly a dramatic unfiimded accrued actuarial liability(UAAL). This liability is required to be charged to employer members of the pension system. The Retirement Board amortizes the UAAL over a period of years(currently 15) using its interest earnings assumption rate—currently 8.35%. Because rates in the bond market are substantially lower than that charged by the Retirement Board, the County can save several million dollars annually by issuing bonds to extinguish that liability. A task force has been examining this strategy for several months, and recommends that the County move forward with this'strategy. It is proposed that up to $400 million in bonds be sold with a 20-year amortization period. The Board has the option of also financing the County's$35.3 million FY 2003-04 debt service payment on its existing pension obligation bonds with a low interest, variable rate bond. L) The proceeds of this bond sale could serve as a one-time hedge in the event the State removes the County's $42 million vehicle license fee"backfill"payment in FY 2003-04. In the event the VLF backfill is not removed,the County could pay back the bondholders immediately with very little lost in the way of interest costs. ' This is the"net County cost"shortfall—i.e.,the shortfall in discretionary general purpose County resources. The"gross"shortfall— which would include the federal and State revenues that are leveraged by the expenditure of local dollars—is anticipated to significantly larger. Actual reductions in the$3 million range are more likely. Departments have submitted,at the direction of the County Administrator, tentative pians for the noted ten percent net County cost reductions which were to have been implemented effective July 1, 2003. A summary of these plans is attached. These plans are characterized as"tentative"because their details have yet to be finalized between the affected departments and the County Administrator. Following the Board's direction, the County Administrator will work with departments to accomplish the implementation of these plans as close to the new April 1 target date as possible. ADDENDUM TO ITEM DA February 25, 20013 On this day, the Beard of Supervisors considered recommendations fforn the County Administrator regarding actions to prepare for the sale of pension obligation bonds and the reduction of net County casts in the fiscal year 2002-2003 County Budget. Supervisor Donna Gerber made the fallowing statement: "As you know,I did not attend the February 14, 2003, workshop where a lot of what you are talking now were considered by the Board. I did that because I wanted to avoid any appearance of a conflict as I am employed by the California Nurses' Association. For anybody that is worried about my relationship with my husband and his employment, he's since retired so he is off the list of potential conflicts of interest. While I don't think there is a legal conflict of interest here,there have been concerns raised publicly as to whether there would be an appearance of a conflict. So I will not participate in this discussion. I will be back for D.5 when you are all done." John Sweeten read out the list of recommendations for the Board's consideration. He amended Recommendation 3 to add the community-based organizations. Recommendation 3 now reads as follows: DIRECT County Administrator to finalize these 10%net county cost reduction plans in consultation with department heads and community based organizations,taking into account operational requirements, and public health and safety mandates; and RETURN to the Board as soon as passible in March with required implementing actions in order to achieve maximum appropriate reductions beginning April 1, 2003. Laura Lockwood, County Administrator's Office, made a PowerPoint presentation entitled "Restructuring of the County's Pension Obligations(attached). Regarding Recommendation 7, Mr. Gioia requested that this agreement between the Board of Supervisors and the Retirement Board be approved by the Retirement Board prior to the issuance of the bands. The Chair invited the public to speak. The following individuals spore: John Wolfe, Contra Costa.Taxpayers Association, 500 Las Juntas, Martinez,regarding the recent benefit package and deferring those benefits for two to three years; Liz Callahan,Contractors' Alliance of Contra Costa County, 2977 Ygnacio Valley, Walnut Creek, CA 94598,regarding the long term impact of eliminating prevention and treatment services in the short-term and the establishment of Community Congress to assist the CAO and departmental staff in decisions about which programs will continue and which will be dismantled in FY 2003-04 and future years(letter provided); Florence McAuley, J PAC, Juvenile Systems Planning Advisory Committee, 479 Delamigo Read, Danville, CA 94526, regarding the cuts to juvenile delinquency programs; Rollie Katz, Local 1, P.O. Box.222, Martinez, regarding the Labor Task Force, Retirement Beard's benefit package, and Voluntary Time Off, Marianne Jameson, JSPAC, Juvenile Justice and Delinquency Prevention Committee; 634 El Pintado Road, Danville, regarding budget cuts affecting the most need of county services. Supervisor Uilkema raised the issue of recommendation No. 7 pertaining to the agreement between the Board of Supervisors and the Retirement Board. She wanted more information about the impact of such an agreement. How would this agreement be impacted if the word were "losses" instead of "surplus"? Supervisor Gioia requested the advice of County Counsel regarding this agreement. He also doesn't want to cut on the prevention side because the treatment side is more expensive. After some discussion, the Board of Supervisors took the following action by unanimous decision(Supervisor Gerber recused herself and did not participate): ACCEPTED recommendations from the County Administrator regarding actions to prepare for the sale of pension obligation bonds and the reduction of net Courcy costs in the fiscal year 2002-2003 County budget;ESTABLISHED an Ad-Hoc Committee chaired by Supervisor John Gioia and Supervisor Federal Glover to evaluate potential revenue enhancements at the local level, both long term and short term, and DIRECTED the County Administrator to formalize a task force with the community based organizations for the purpose of establishing better communication in regards to potential cuts. 2003-200410% NCC Budget Reduction Potential Position Impacts 10% Position ! Estimated FTEs DEPARTMENTS REDUCTION FTEs Filled Vacant HEALTH SERVICES 1 $8,441,400 47.0 32.0 15.0 SHERIFF-CORONER $4,171,709__'_ 37.0 8.0 29.0 PROBATION $2,817,714 ! 27.0 26.0 1.0 PUBLIC DEFENDER $1,514,9671 17.5 17.5 - EMPLOY & HUMAN SVCS $1,378,237 , 26.0 26.0 * 0.0 LIBRARY $1,100,000 9.3 .__ 5.0 4.3 DISTRICT ATTORNEY-- $950,127 10.0 8.0 2.0 RISK MANAGEMENT $720,218 0.0 GENERAL SERVICES 3 $700,588 7.0 7.0 EMPLOYEE/RETIREE BEN. $693,608 0.0 � . -- ASSESSOR 4 - $801,927 4.0 4.0 ,JUSTICE SYS PLANNING $473,103 0.0 - y ANIMAL SERVICES $343,034 ' 0.0 COUNTY ADMINISTRATOR $301,657 2.0` 2.0 CLERK-RECORDER $275,309 1.0 1.0 BOARD OF SUPERVISORS 5 v $258,293 0.0 HUMAN RESOURCES $245,210 1.0 1.0 TREASURER-TAX COLLECT. $190,828 0.0 AUDITOR-CONTROLLER 4 $180,490 3.01 3.0 COUNTY COUNSEL $179,559 1.0; 1.0 AGRICULTURE-WGH & MEAS $127,799 2.0 2.0 MGMT INFO SYSTEMS --$103,995 ! _ 0.0 COMMUNITY DEVELOPMENT $83,534 0.0 � CLERK OF BOARD $45,757 0.0; INSTITUTES - $39,818 0.01 BUILDING INSPECTION _ $32,500 0.0 ECONOMIC PROMOTION - $30,578 i 0.0 - COOPERATIVE ERTEN. $28,383 0.0 PUBLIC WORKS $25,793 0.0 COMMUNITY SERVICES $24,638 i 0.0 --- - TELECOMMUN'1CATIONS $22,448 0.0 (1)Flw"Services'cut excludes west County Jaa Medical Program increase of$135,5W (2)Excludes debt servers(0790)of$3.5m&$1$m in IHSS appropriations in EHS. j (3)Excludes$9.5m in foxed costs for utilities,debt service,rents,taxes, (4)Includes Credits for supplemental and property tax administration Fees. 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'Frff Ffi f`.•,ff.}:��'?r r JJ� rJ�f�J/?�Gjf'�%,'.,�} �d��r�r � f :f�fJfJJI. %f J F. %r• .F,r f::::f{l}:';rr:,;:% JJ , f ';;J�f�l � / }�/ ; '•.:,is�::;; i;xr:::;.{:,'Ei: f � },iJ�. 1,�� Jf•rr Jj� � r� } J ii:Siiii<{<+r:f:%':?`''%.':2%% �:E'r:'tY... J r +I J' ' 01,11,111, j''� .F, �� /.;iiir iiiia•>:.ii+::.i:...r } / } i' sz ->ss;;;<:>:ass>:'?>:<:;>i:%i.i:.i:<.i>;:-i:::. f r J ............: <C<: ......[2:?[:15+..[....F ii>:�i:{.;,: ;<�J �` . r ; r".. ✓ /� /„ 3.±0.. -e•d� L..1.'. �.ice'. f = rrs Alliance of Contra Costa "County 1t97'7'Y na to Valley Road #445 Walnut Creek CA 94598 2 c V <. ;; . ;`;;>:` ' cies hone: 925-932-4755 fax: 925-932-4917 thealliance@astound.net p :.::: To the Board of Supervisors From the Contractorss Alliance of Contra Costa Statement of position on Budget Balancing Recommendations ........................... February 21,2003 The ContractorsAlliance of Contra Costa believes we speak for the entire nonprofit community when we say that the budget crisis facing this ::::. :::::. county,while unparalleled in its magnitude, promises to be felt in very Personal and very human ways by virtually every provider of health and social services as well as every man woman and child dependent on those services. And while we are talking in terms of an 0M problem—numbers $5 ng almost too big to grasp—those dollars �g translate into even bigger numbers wheni we consider the long-term impact of eliminating preenfrn and treatment services in the short-term. The dollar we don't spend today translates into thousands of dollars that we will inevitably spend tomorrow. That's a fact we all know too well. :: ...; In these times of uncertainty,there is one thing that is certain:we :..... n9 cannot afford to approach this crisis from the comfort of our sector silos. We must join thoughtfully, but swiftly,to ensure that the decisions we make and the policies we ado tare being driven by needs of the Pea we serve. This process cannot be about saving jobs or even saving agencies. It must be .... about saving fives. s::: :.... ; On February 14th,the Board of Supervisors adopted the CAO's recommendations for balancing the budget. We concur with the strategies g e9 >- '> that close) evaluate u o y use f current resources and maximize revenues. We are concerned, however,that the county continues to approach this process xasr f its a i:? :f county problem to be solved by count staff. This i s not a county ::>:::::.... problem. This is a community problem. And only an open,transparent and inclusive process will bring forth the creative solutions we need. Thus the Contractors Alliance >< � = ` ` nests the following: .......i - a` ::»::>>:<:>: 2>> % `:? 1. The Alliance asks that the Board of Supervisors rvisors appDint a Community Congress to work with the County on a Statement of 9 ......::<;:.... Principles that outlines both the underlying philosophy as well as it i 2'i ii?> ` i ii i>. '?i?s 2 ii . i ::::::t.:: :: ::::.: ...:: the criteria that will be used to determine which programs will ...C: .:::...... continue and which will be dismantled in FY 2003/04 and future years. '...... i ?�i'iiii We respectfully suggest that this group be facilitated b the CAO or his »:::ii:: f Y g9 g P Y designee and include CAO and departmental staff, and representatives 9 P P ::�.:�:::::::..: of the Contractors Alliance,of contractingagencies who are not g ld +. '[iiii' i£iii i` f` ' Affiance members, of Local 1,SEIU).Deal 535,and other employee unions,and of police and fire associations. In addition to the outcomes stated above,the Community Congress would also be responsible for creating a process and a timeline to be used in future budget cycles ;. that encourages open and inclusive dialogue between service providers ctY and con departments. ts. Statement of position on Budget Balancing Recommendations February 21,2003 Page Two 2. The Alliance calls on the Board of Supervisors to ensure that the decisions being made around the budget are driven by the needs of the community. The CACI provided the Board with a table that delineates the impact that a 10%reduction potentially will have on county positions.{Exhibit B1 from Board Workshop#2} It is a disturbing reality. We cannot help but note that no such table was prepared to inform the public of the impact of budget cuts on employees of community-based organizations,although we know that there will be layoffs in our sector as well. Yet as troubling as the prospect of lost jobs is,we believe strongly that the Board of Supervisors must make a dear statement that the needs of the people who use county-and nonprofit- based services are the priority at this critical time. As we said earlier,this process cannot be about saving jobs or saving agencies. It must be',about saving lives. 3. The Alliance asks that projected cuts for the 2003104 budget be made public at a Board of Supervisors meeting by April 1,2003 in order to allow agencies time to assess the impact of those cuts. The nonprofit sector is committed to providing leadership in partnership with government,labor,business and local residents to identify and preserve the services necessary to meet the human needs of our community. We welcome the opportunity to work together with our local government to achieve that goal and we pledge to this Board of Supervisors and to the County Administrator access to our boards,volunteers and clients to worts with you on behalf of the advocacy efforts in which you are engaged in Sacramento. As we said earlier,the County is not alone is these challenging times. The issues belong to all of us.